{"id":4572,"date":"2003-08-08T00:00:00","date_gmt":"2003-08-07T18:30:00","guid":{"rendered":"https:\/\/www.legalindia.com\/judgments\/dilip-so-devdatta-jejani-vs-state-of-maharashtra-and-ors-on-8-august-2003"},"modified":"2018-11-27T01:35:56","modified_gmt":"2018-11-26T20:05:56","slug":"dilip-so-devdatta-jejani-vs-state-of-maharashtra-and-ors-on-8-august-2003","status":"publish","type":"post","link":"https:\/\/www.legalindia.com\/judgments\/dilip-so-devdatta-jejani-vs-state-of-maharashtra-and-ors-on-8-august-2003","title":{"rendered":"Dilip S\/O Devdatta Jejani vs State Of Maharashtra And Ors. on 8 August, 2003"},"content":{"rendered":"<div class=\"docsource_main\">Bombay High Court<\/div>\n<div class=\"doc_title\">Dilip S\/O Devdatta Jejani vs State Of Maharashtra And Ors. on 8 August, 2003<\/div>\n<div class=\"doc_citations\">Equivalent citations: 2004 (3) BomCR 445, 2003 (4) MhLj 649<\/div>\n<div class=\"doc_author\">Author: A Deshpande<\/div>\n<div class=\"doc_bench\">Bench: R Kochar, A Deshpande<\/div>\n<\/p>\n<pre><\/pre>\n<p>JUDGMENT<\/p>\n<p> A.P. Deshpande, J.  <\/p>\n<p> 1. Rule. Rule made returnable forthwith. Heard<br \/>\nthe learned Counsel for the parties finally by consent.\n<\/p>\n<p> 2. The petitioner by the instant petition questions the legality and validity<br \/>\nof the order passed by the respondent No. 2 State Government dated 24-4-2003 at<br \/>\nAnnexure &#8216;F&#8217;. The said order is purported to have been passed in exercise of<br \/>\npowers under Section 42(3) of the Maharashtra Municipal Councils, Nagar<br \/>\nPanchayats and Industrial Townships Act, 1965 in an appeal filed by the<br \/>\nrespondent No. 3, a defeated candidate in municipal election.\n<\/p>\n<p> 3. The petitioner was elected as a municipal councillor to Municipal<br \/>\nCouncil, Wadsa Desaiganj in December, 2001 as a candidate of Bharatiya Janata<br \/>\nParty whereas the respondent No. 3 had contested the election as a candidate for<br \/>\nthe rival party and had lost the said election. The third respondent filed an appeal<br \/>\nbefore the Minister for State, Department of Urban Development, Mantralaya<br \/>\nmaking a complaint therein to the effect that the petitioner is a member of joint<br \/>\nfamily of his mother and the petitioner&#8217;s mother who is owner of a rice mill<br \/>\nsituated at Desaiganj, Wadsa had effected some illegal construction by making an<br \/>\nencroachment on Government land which caused obstruction to the public way.<br \/>\nTo put it in short, it was the grievance made by the respondent No. 3 that as a<br \/>\nconsequence of the said alleged illegal construction, the petitioner has incurred a<br \/>\ndisqualification as he has constructed, either himself or through his dependent, an<br \/>\nillegal and unauthorised structure violating the provisions of the Act or the<br \/>\nMaharashtra Regional and Town Planning Act or the Rules or bye-laws framed<br \/>\nunder the said Act. It was alleged by the third respondent before the second<br \/>\nrespondent that the petitioner is directly or indirectly responsible for helping in the capacity as such councillor in carrying out the illegal and unauthorised<br \/>\nconstruction. As referred to hereinabove, on the said complaint, the second<br \/>\nrespondent has passed an order declaring the petitioner as having incurred a<br \/>\ndisqualification and has further proceeded to pass an order disqualifying the<br \/>\npetitioner for a period of five years from holding the office of councillor as is<br \/>\nprovided under Sub-section (4) of Section 42.\n<\/p>\n<p> 4. The learned Counsel for the petitioner though raised various grounds in<br \/>\nthe petition and attempted to substantiate the same, we need not deal with the<br \/>\nother grounds except the one which is strenuously pressed in service and which<br \/>\nrelates to interpretation of Sections 44 and 42 of the Act. The point raised by the<br \/>\nlearned Counsel for the petitioner is to the following effect:&#8211;\n<\/p>\n<p> His submission is that the ground on which the second respondent has<br \/>\npassed an order of disqualification and the petitioner&#8217;s consequential removal<br \/>\nfrom the office of Councillor is squarely covered by Section 44(1)(e) which lays<br \/>\ndown that a councillor shall be disqualified to hold office as such, if at any time<br \/>\nduring his term of office, he &#8211;\n<\/p>\n<p> &#8220;(a)&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;\n<\/p>\n<p> (b)&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;\n<\/p>\n<p> (c)&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;\n<\/p>\n<p> (d)&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;&#8230;\n<\/p>\n<p> (e) has constructed or constructs by himself, his spouse or his dependent,<br \/>\nany illegal or unauthorised structure violating the provisions of this Act,<br \/>\nor the Maharashtra Regional and Town Planning Act, 1966 (Mah.<br \/>\nXXXVII of 1966) or the rules or bye-laws framed under the said Acts; or<br \/>\nhas directly or indirectly been responsible for, or helped in his capacity<br \/>\nas such Councillor in, carrying out such illegal or unauthorised<br \/>\nconstruction or has by written communication or physically obstructed or<br \/>\ntried to obstruct, any Competent Authority from discharging its official<br \/>\nduty in demolishing any illegal or unauthorised structure,<br \/>\nand he shall be disabled subject to the provisions of Sub-section (3) from<br \/>\ncontinuing to be a Councillor and his office shall become vacant:<br \/>\nProvided that &#8211;\n<\/p>\n<p> (i) a Councillor shall not be disqualified under Clause (c) if he is engaged<br \/>\nfor the Council without receiving any remuneration therefor or appears<br \/>\nand conducts his own case in a Court of law or before any authority<br \/>\nunder this Act against the Council irrespective of whether such a<br \/>\nCouncillor is a legal practitioner by profession or not;\n<\/p>\n<p> (ii) for the purpose of Clause (d) when the Councillor applies for leave,<br \/>\nsuch leave shall be deemed to have been granted unless it is refused<br \/>\nwithin a period of sixty days from the date of his application.\n<\/p>\n<p> (2) When a Councillor whether elected or nominated incurs any of the<br \/>\ndisqualifications in Sub-section (1), it shall be the duty of the Chief<br \/>\nOfficer to submit a report to the Collector within one month of his<br \/>\nbecoming aware of the disqualification through any source whatsoever.\n<\/p>\n<p> (3) In every case the authority to decide whether a vacancy has arisen<br \/>\nshall be the Collector. The Collector may give his decision on receipt of  the report of the Chief Officer under Sub-section (2), or on his own<br \/>\nmotion or on an application made to him by a voter and such decision<br \/>\nshall be communicated to the Councillor concerned, the Chief Officer<br \/>\nand the applicant, if any. Until the Collector decides that a vacancy has<br \/>\narisen and such decision is communicated as provided above, the<br \/>\nCouncillor shall not be deemed to have ceased to hold office.&#8221;<br \/>\nThe scheme of Section 44 clearly brings home the position that if a<br \/>\nCouncillor incurs a disqualification contained in Section 16 [except the<br \/>\ndisqualification specified in Clause (h) of Sub-section (1) of that section] or has<br \/>\nincurred other disqualifications contained in Section 44, then in that eventuality,<br \/>\nremoval is permissible in the manner laid down in Sub-sections (2) and (3) of Section 44. Sub-section (2) obliges the Chief Officer, on noticing that any<br \/>\nCouncillor has incurred a disqualification, to submit a report to the Collector<br \/>\nwithin the stipulated period. Sub-section (3) categorically declares that in every<br \/>\ncase the authority to decide whether a vacancy has arisen shall be the Collector.<br \/>\nThe Collector is empowered to act on the report submitted by the Chief Officer<br \/>\nor suo motu or on an application made to him by any voter to give a decision as<br \/>\nto whether the Councillor has incurred a disqualification. It is only on<br \/>\ncommunication of the said decision by the Collector to the Councillor concerned,<br \/>\nthe said decision takes effect. Till the decision of the Collector is communicated<br \/>\nto the Councillor, he shall not be deemed to have ceased to hold the office. Sub-<br \/>\nsection (4) of Section 44 provides a remedy of appeal to the aggrieved person and<br \/>\nthe appeal is provided to the State Government and the State Government&#8217;s order<br \/>\nhas been given finality. The orders that are expected to be passed by the<br \/>\nCollector and the State Government under Section 44 are to be passed after<br \/>\ngranting an opportunity of hearing to the Councillor and the same is provided for<br \/>\nin the proviso to Sub-section (4).\n<\/p>\n<p> 5. In the instant case, the removal of the Councillor is squarely for the<br \/>\nreason of he having incurred a disqualification under Section 44(1)(e) and or, no<br \/>\nother count. The learned Counsel for the petitioner in this view of the matter,<br \/>\nsubmits that the only course which is permissible to be adopted for the removal<br \/>\nof the petitioner was by an order of the Collector and the State Government being<br \/>\nan appellate authority could not have entertained the complaint directly and<br \/>\npassed an order unseating the petitioner Councillor, besides disqualifying him for<br \/>\na further period of 5 years from the date of the impugned order.\n<\/p>\n<p> 6. Per contra, the learned Counsel appearing for the respondent No. 3, viz.<br \/>\nthe appellant\/complainant before the State Government, has tried to justify the<br \/>\norder by placing reliance on Section 42 of the Act, which reads thus :&#8211;\n<\/p>\n<p> Section 42. Liability of Councillors to removal from office. &#8212; (1) The State<br \/>\nGovernment may on its own motion or on the recommendation of the<br \/>\nCouncil remove any Councillor from office if such Councillor has been<br \/>\nguilty of any misconduct in the discharge of his duties, or of any<br \/>\ndisgraceful conduct during his current term of office or even during his<br \/>\nimmediately preceding term of office as a Councillor.\n<\/p>\n<p> (2) The State Government may likewise remove any Councillor from<br \/>\noffice if such Councillor has in the opinion of the State Government<br \/>\nbecome incapable of performing his duties as a Councillor.\n<\/p>\n<p>(3) No resolution recommending the removal of any Councillor for the<br \/>\npurposes of Sub-section (1) or (2) shall be passed by a Council and no<br \/>\norder of removal shall be made by the State Government, unless the<br \/>\nCouncillor to whom it relates has been given a reasonable opportunity of<br \/>\nshowing cause why such recommendation or order, as the case may be,<br \/>\nshould not be made.\n<\/p>\n<p> (4) In every case the State Government makes an order under Sub-section (1) or (2), the Councillor shall be disqualified from becoming a<br \/>\nCouncillor, or a Councillor or member of any other local authority for a<br \/>\nperiod of five years from the date of such order.\n<\/p>\n<p> In view of the above, the learned Counsel for the respondent No. 3, has<br \/>\nsubmitted that the jurisdiction of the State Government to remove a Councillor if<br \/>\nhe has been guilty of any misconduct in the discharge of his duties or of any<br \/>\ndisgraceful conduct cannot be cut down by excluding the cases covered by Section 44 of the Act. He further submits that the jurisdiction of the State<br \/>\nGovernment is concurrent in regard to all the matters falling under Section 16<br \/>\nand\/or Section 44 of the Act.\n<\/p>\n<p> 7. Having regard to the scheme of the Act in the matter of removal of the<br \/>\nCouncillor, it is clear that a Councillor can be removed under Section 44 if he<br \/>\nincurs a disqualification specified in Section 16 (except the disqualifications<br \/>\nspecified in Clause (h) of Sub-section (1) of that section) or if he incurs a<br \/>\ndisqualification as prescribed in Section 44(1)(b), (c), (d) and (e). Such removal<br \/>\nhas to be in the manner prescribed. It is a settled position of law, that if law<br \/>\nprovides a thing to be done in a particular manner, then it has to be done in that<br \/>\nmanner only or not at all. A foolproof procedure is laid down in Section 44 and<br \/>\nthe Collector is named as a Competent Authority to decide whether a vacancy<br \/>\nhas arisen as a result of the Councillor incurring a disqualification and it is<br \/>\npertinent to note that the decision of the Collector in that regard is subject to an<br \/>\nappeal before the State Government. If this be the position in law, it is difficult<br \/>\nto read that the disqualifications contained in Section 16 and Section 44 would<br \/>\nalso fall within the compass of the phraseology used in Section 42 which reads<br \/>\nthus:&#8211;\n<\/p>\n<p>  &#8220;if such Councillor has been guilty of any misconduct in the discharge of<br \/>\nhis duties or of any disgraceful conduct.&#8221;\n<\/p>\n<p> No doubt, the State Government has wide powers to remove a Councillor<br \/>\nin the matters pertaining to misconduct in the discharge of his duties or any<br \/>\ndisgraceful conduct but it is obvious that the misconduct or disgraceful conduct<br \/>\nreferred to in Section 42 would not cover and include the disqualifications<br \/>\ncontained in Section 16 or Section 44 of the Act. Reading of Section 42 in the<br \/>\nmanner canvassed by the learned Counsel for the respondent No. 3 would render<br \/>\nthe provision contained in Section 44 nugatory. Section 42 is enacted to take care<br \/>\nof cases of misconduct and disgraceful conduct falling outside the<br \/>\ndisqualifications contained in Section 16 and Section 44 of the Act.\n<\/p>\n<p> 8. The learned Counsel Shri P. C. Madkholkar appearing for the<br \/>\nrespondent No. 3 has submitted that Section 16 and Section 44 are so exhaustive<br \/>\nthat all possible misconducts and disgraceful conducts are covered therein and<br \/>\nnothing could be said to have been left out of it. We are not in agreement with this submission. It is possible to conceive of various other misconducts and<br \/>\ndisgraceful conducts which a Councillor could be accused of being guilty, which<br \/>\nfall outside the disqualifications contained in Section 16 and Section 44 of the<br \/>\nAct. We need not mention those situations as the same is not necessary. Both the<br \/>\nsections, viz. sections 42 and 44 operate in different spheres. Once it is found that<br \/>\nthe act complained of in regard to incurring of disqualification falls within the<br \/>\nambit of disqualifications contained in Section 16 [except the disqualification<br \/>\nspecified in Clause (h) of Sub-section (1) of the section] or under Section 44(1)(b),\n<\/p>\n<p>(c), (d) or (e), the procedure laid down in Section 44 has to be followed and the<br \/>\njurisdiction to determine, as to whether a Councillor has incurred a<br \/>\ndisqualification would vest in the Collector and the State Government being an<br \/>\nappellate Authority cannot exercise the powers of the Collector by entertaining a<br \/>\ncomplaint at the first instance.\n<\/p>\n<p> 9. In this view of the matter, we are of the clear view that the second<br \/>\nrespondent passed the impugned order without jurisdiction and as such, the same<br \/>\nis nullity requiring its quashing and setting aside. We make it clear that though<br \/>\nother grounds are raised in the petition, we are not proceeding to decide the same<br \/>\nas the petition can be conveniently disposed of in the light of the interpretation<br \/>\nthat we have placed on Sections 42 and 44 of the Act.\n<\/p>\n<p> 10. It is brought to our notice that during pendency of this petition, the<br \/>\nlearned Single Judge of this Court by its order dated 13-5-2003 had passed an<br \/>\ninterim order in terms of prayer made in application dated 13-5-2003 bearing<br \/>\nC. A. No. 2706\/03. The prayer therein seeks stay of the operation and execution<br \/>\nof the letter dated 13-5-2003 filed at Annexure &#8216;A-1&#8217;. The letter at Annexure &#8216;A-1&#8217;<br \/>\ndated 3-5-2003 is in regard to taking of proceedings for filling in the post which<br \/>\nfell vacant pursuant to the order passed by the respondent No. 2 which is<br \/>\nimpugned in the instant writ petition. It is as such clear that because of interim<br \/>\norder passed by this Court the post occupied by the petitioner is still lying vacant.\n<\/p>\n<p> 11. In the result, the Writ Petition is allowed and we pass the following<br \/>\norder:&#8211;\n<\/p>\n<p>  The impugned order passed by the respondent No. 2 is quashed and set<br \/>\naside.\n<\/p>\n<p> There shall be no order as to the costs.<\/p>\n","protected":false},"excerpt":{"rendered":"<p>Bombay High Court Dilip S\/O Devdatta Jejani vs State Of Maharashtra And Ors. on 8 August, 2003 Equivalent citations: 2004 (3) BomCR 445, 2003 (4) MhLj 649 Author: A Deshpande Bench: R Kochar, A Deshpande JUDGMENT A.P. Deshpande, J. 1. Rule. Rule made returnable forthwith. Heard the learned Counsel for the parties finally by consent. [&hellip;]<\/p>\n","protected":false},"author":1,"featured_media":0,"comment_status":"open","ping_status":"open","sticky":false,"template":"","format":"standard","meta":{"_lmt_disableupdate":"","_lmt_disable":"","_jetpack_memberships_contains_paid_content":false,"footnotes":""},"categories":[11,8],"tags":[],"class_list":["post-4572","post","type-post","status-publish","format-standard","hentry","category-bombay-high-court","category-high-court"],"yoast_head":"<!-- This site is optimized with the Yoast SEO plugin v27.3 - https:\/\/yoast.com\/product\/yoast-seo-wordpress\/ -->\n<title>Dilip S\/O Devdatta Jejani vs State Of Maharashtra And Ors. on 8 August, 2003 - Free Judgements of Supreme Court &amp; High Court | Legal India<\/title>\n<meta name=\"robots\" content=\"index, follow, max-snippet:-1, max-image-preview:large, max-video-preview:-1\" \/>\n<link rel=\"canonical\" href=\"https:\/\/www.legalindia.com\/judgments\/dilip-so-devdatta-jejani-vs-state-of-maharashtra-and-ors-on-8-august-2003\" \/>\n<meta property=\"og:locale\" content=\"en_US\" \/>\n<meta property=\"og:type\" content=\"article\" \/>\n<meta property=\"og:title\" content=\"Dilip S\/O Devdatta Jejani vs State Of Maharashtra And Ors. on 8 August, 2003 - Free Judgements of Supreme Court &amp; 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